Chapter 1 Virginia’s Water Resources Planning Process
Planning and Water Resources Management in Virginia
This Chapter discusses the history of water resources planning in Virginia, the interrelationship between
this State Water Resources Plan (SWRP) and water use permitting, and current water supply planning
efforts in Virginia. It also includes a brief overview of Virginia’s population, economy, and anticipated
growth as they relate to water resources management and planning.
Water resources management encompasses planning, developing, distributing, and managing water
resources for their optimum use. These interrelated tasks can be accomplished by considering all of the
competing demands for water, allocating water resources on an equitable basis, and satisfying all uses
and demands.
Water supply planning in Virginia is designed, among other goals, to encourage, promote, and protect all
beneficial uses of the Commonwealth’s water resources. As defined by § 62.1-44.3 of the Code of
Virginia:
"Beneficial use" means both in-stream and off-stream uses. In-stream beneficial uses
include, but are not limited to, the protection of fish and wildlife resources and habitat,
maintenance of waste assimilation, recreation, navigation, and cultural and aesthetic
values. The preservation of in-stream flows for purposes of the protection of navigation,
maintenance of waste assimilation capacity, the protection of fish and wildlife resources
and habitat, recreation, cultural and aesthetic values is an in-stream beneficial use of
Virginia's waters. Off-stream beneficial uses include, but are not limited to, domestic
(including public water supply), agricultural uses, electric power generation, commercial,
and industrial uses.
The Commonwealth of Virginia is rich in volume, type, and diversity of water resources. Precipitation
averages almost 43 inches of rain per year, much more than many other states. However, as the impacts
of the droughts of the last two decades demonstrated, this resource cannot be taken for granted. The
Commonwealth and its localities must work together to manage and protect the water resources to meet
long-term human and environmental needs. Improved coordination of drought response and water
resources management activities at the local, regional, and state levels are essential to guaranteeing the
adequacy of water supplies to meet current and future needs of Virginia's citizens in an environmentally
sound manner. The challenge is to ensure sufficient water supplies are available to meet existing and
future beneficial uses of water.
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Water Resource Planning
Virginia has been involved in water resources management and water supply planning since 1927. Early
efforts (between 1927 and 1968) involved the development of various “bulletins” developed periodically
for major river basins. These early reports primarily examined surface water, with some effort to describe
groundwater resources. The information in these plans was based upon streamflow data and water
availability. Planning efforts expanded between 1968 and 1972, following an extended multi-year
drought. Reports examining water availability were again developed by major river basin during this time.
However, these plans differed from the early plans in that they contained the first inventory of local water
use.
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The authority for these early plans and reports outlines the following principles and policies:
1)
Existing water rights are to be protected and preserved subject to the principle that all of the state
waters belong to the public for use by the people for beneficial purposes without waste;
2)
Adequate and safe supplies should be preserved and protected for human consumption, while
conserving maximum supplies for other beneficial uses. When proposed uses of water are in
mutually exclusive conflict or when available supplies of water are insufficient for all who desire to
use them, preference shall be given to human consumption purposes over all other uses;
3)
It is in the public interest that integration and coordination of uses of water and augmentation of
existing supplies for all beneficial purposes be achieved for maximum economic development
thereof for the benefit of the Commonwealth as a whole;
4)
In considering the benefits to be derived from drainage, consideration shall also be given to
possible harmful effects upon groundwater supplies and protection of wildlife;
5)
The maintenance of streamflows sufficient to support aquatic life and to minimize pollution shall
be fostered and encouraged;
6)
Watershed development policies shall be favored, whenever possible, for the preservation of
balanced multiple uses, and project construction and planning with those ends in view shall be
encouraged;
7)
Due regard shall be given in the planning and development of water recreation facilities to
safeguard against pollution.
Amended in 1981, Section 62.1-44.38 of the Code of Virginia required preparation and submission of a
plan and programs for the management of the Commonwealth’s water resources “to encourage, promote
and secure the maximum beneficial use and control thereof.” Plans were required for each major river
basin of the Commonwealth, specifically naming the Potomac-Shenandoah, Rappahannock, York,
James, Chowan, Roanoke, New, and the Tennessee-Big Sandy River Basins, and for those areas in the
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Code of Virginia §62.1-44.36
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Tidewater and elsewhere in the Commonwealth not within these major river basins, and were to include
the following information:

An estimate of current water withdrawals and use for agriculture, industry, domestic use, and
other significant categories of water users.

A projection of water withdrawals and use by agriculture, industry, domestic water use, and other
significant categories of water users.

An estimate, for each major river and stream, of the minimum in-stream flows necessary to
maintain water quality and avoid permanent damage to aquatic life in streams, bays, and
estuaries during drought conditions.

An evaluation, to the extent practicable, of the ability of existing subsurface and surface waters to
meet current and future water uses, including minimum in-stream flows, during drought
conditions.

An evaluation, in cooperation with the Virginia Department of Health and local water supply
managers, of the current and future capability of public water systems to provide adequate
quantity and quality of water.

An identification of water management problems and alternative water management plans to
address such problems.

An evaluation of the hydrologic, environmental, economic, social, legal, jurisdictional, and other
aspects of each alternative management strategy identified.
Following the 1981 amendments to § 62.1-44.38, water supply planning efforts were undertaken as major
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river basin plans were developed between 1985 and 1988. For the first time, safe yield and analysis of
local demand were included in plans in addition to information on water availability and an inventory of
local systems and use.
Establishment of a Comprehensive Water Supply Planning Process
Despite Virginia’s early efforts to better manage water resources, during the drought of 1999-2002 some
localities were unprepared for a dwindling water supply. The intensity of the drought impacts peaked in
late August 2002. Wildfire indices were at levels previously unrecorded in Virginia, the vast majority of
Virginia agricultural counties had applied for Federal drought disaster designation, streamflows reached a
period of record lows, and thousands of individual private wells failed. Several public water supply
systems across the Commonwealth were on the brink of failure and a number of large municipal systems
had less than 60 days of water supply capacity remaining in reservoirs.
8
See “Safe yield” in Glossary.
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In response, the Virginia General Assembly amended the Code of Virginia to require the establishment
of a “comprehensive water supply planning process for the development of local, regional, and state
water supply plans…designed to (i) ensure that adequate and safe drinking water is available to all
citizens of the Commonwealth, (ii) encourage, promote, and protect all other beneficial uses of the
Commonwealth's water resources, and (iii) encourage, promote, and develop incentives for alternative
water sources, including, but not limited to desalination.”
The distinction between this water supply planning effort and previous efforts is the establishment of a
continuous, comprehensive, iterative, long range planning process. This planning process involved the
development of local or regional plans by local governments; plans were to describe environmental
resources, and existing and anticipated water sources, water use, and water demand. These plans,
further described in the following sections, form the foundation of this SWRP. The data from the plans
provides information necessary to determine the likely impacts on water resources if future demands are
met. The planning process also provides information to be considered in the permitting process for future
water supply withdrawals.
Local and Regional Water Supply Plans
At the heart of Virginia’s comprehensive water supply planning process are the local and regional water
supply plans, the content of which is defined by regulatory requirements. Virginia’s water supply planning
program is designed to be a statewide partnership, enabling local and
regional partners, such as planning district commissions, water
authorities, and other stakeholders, to take the lead in identifying their
future water needs with the technical support and oversight of the
State. The Local and Regional Water Supply Planning Regulation
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(WSP Regulation) requires that all counties, cities, and towns in the
Virginia’s Water Resources:


Commonwealth of Virginia participate in the development of, and
formally adopt, a local or regional water supply plan.

are finite;
have multiple uses,
each protected by law;
and
are increasingly in
demand.
Water Supply Plan Review Process
Ten “local” (individual locality) and 38 “regional” (two or more
localities) water supply plans were developed and submitted to the Virginia Department of Environmental
Quality (DEQ) by planning entities between 2008 and 2011. DEQ provided technical and financial
assistance to facilitate development of the plans and aided localities and regions in acquiring information
on existing resource conditions and existing water use and sources. DEQ also assisted with the
9
Code of Virginia §62.1-44.38:1, 2003
§9VAC 25-780, 2005
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identification of methods for the projection of future water needs. As required by the WSP Regulation, all
localities in the Commonwealth held public hearings during the development of the water supply plans
and formally adopted the plans, and all plans were submitted to DEQ by the regulatory deadlines. DEQ
carefully reviewed each plan for compliance with the WSP Regulation, coordinated with local
governments to ensure that plans were as complete and accurate as possible, and entered submitted
information into the content management system used for the cumulative impact analysis.
Development of the State Water Resources Plan
Information and data submitted in the local and regional water supply plans are included in this SWRP. In
addition to the local data, the SWRP incorporates water withdrawal data submitted by water users
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to
DEQ. The SWRP includes a cumulative impact analysis based upon information contained in the local
and regional water supply plans and other sources. This analysis is discussed in detail in Chapter 5
Assessing the Long Term Sustainability of Water Resources. In its entirety, this SWRP describes the
major water supply issues facing state and local governments through 2040. DEQ anticipates updating
the SWRP at five-year intervals, with each update reflecting the most recent local and regional water
supply planning information.
The first document of its kind in Virginia, the SWRP is the primary mechanism available for achieving
wise, long-term water use. Sustainability means maintaining the "beneficial uses" that are considered to
be essential to the wellbeing of the Commonwealth's human and natural resources.
Pursuant to Virginia Code § 62.1-44.38, the purpose of the SWRP includes the following:

Estimate current water withdrawals and use for agriculture, industry, domestic use, and other
significant categories of water users;

Project water withdrawals and use by agriculture, industry, domestic water use, and other
significant categories of water users;

Estimate, for each major river and stream, the minimum in-stream flows necessary during drought
conditions to maintain water quality and avoid permanent damage to aquatic life in streams, bays,
and estuaries;

Evaluate, to the extent practicable, the ability of existing subsurface and surface waters to meet
current and future water uses, including minimum in-stream flows, during drought conditions;

Evaluate, in cooperation with the Virginia Department of Health and local water supply managers,
the current and future capability of public water systems to provide adequate quantity and quality
of water;
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§9VAC25-200
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
Identify water management problems and alternative water management plans to address such
problems; and

Evaluate hydrologic, environmental, economic, social, legal, jurisdictional, and other aspects of
each alternative management strategy identified.
Among other uses, the SWRP can be used to:

Identify and prioritize water resource and water supply development projects.

Provide information to public and private decision makers regarding water availability to help
guide efficient investment and economic development.

Identify opportunities for improving operation of existing water resources infrastructure.

Guide the development and implementation of policies and programs to reduce the risk of water
shortages from drought and conflicts between water users or uses.

Guide policies on activities that directly and significantly affect the quantity and quality of water
available with the objective of balancing and encouraging multiple uses of water resources.

Educate the public about the sources and uses of water in the Commonwealth.
Interrelationship between Water Supply Planning and Water Use Permitting
Water supply plans are an important component of the evaluation process for both the Virginia Water
Protection (VWP) and Groundwater Withdrawal (GW) permitting programs. Permitting staff in the DEQ
VWP and GW permitting programs coordinate with water supply planning staff when evaluating permitting
actions. Prior to the issuance of a VWP or GW permit, relevant information contained in water supply
plans are given consideration for Virginia Water Protection Permitting
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and for Groundwater Withdrawal
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Regulations .
Population, Economy, and Growth Depend upon Water
As Virginia’s population and economy continue to grow, so does the need for good quality, reliable water
supplies. The future of the economy depends upon having enough water for future needs.
Population
According to the most recent data from the U. S. Census Bureau, the population of the Commonwealth of
Virginia is estimated to be 8,185,867, 2.6% of the total United States population. Virginia’s population is
estimated to have grown 2.5% since the 2010 Census estimate of 8,001,024 persons (Table 1-1).
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13
9VAC25-210-80 B 2 g, and 9VAC25-210-115 B 2 and C 2
9VAC25-610-102
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Approximately 86% of all Virginians live in 11 metropolitan areas: Washington-Arlington-Alexandria,
Virginia Beach-Norfolk-Newport News, Richmond, Roanoke, Lynchburg, Charlottesville, Blacksburg,
Bristol, Winchester, Harrisonburg, and Danville. Approximately 3% of the population lives in seven
smaller urban areas (micropolitan areas) and 11% live in rural areas. The percentage of estimated
population increase from 2010 to 2040 is 32%. As described later in this SWRP, this is consistent with
the projected water use for the same time period.
Region
United States
2010
2020
2030
2040
308,745,538
335,605,444
360,978,449
382,152,235
8,001,024
8,871,484
9,701,508
10,415,575
Virginia
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Table 1-1 Population Estimates for U.S. and Virginia: 2010–2040
Economy and Growth
Water contributes to economic growth when used for hydroelectric power generation, navigation, and
industrial, agricultural, and commercial purposes. Water also provides the streamflows, lakes, and
reservoirs necessary to support fish and wildlife, boating, scenic attractions, and related recreation and
tourism industries.
In seeking lasting solutions to the growing and competing demands for Virginia’s water resources, the
ultimate goal must be to create balance and sustainability. In this respect, a healthy natural environment
as well as strong local economies will demonstrate the achievement of balance. Industries and
communities must be sustainable and profitable in both the short and long term. Likewise, resource
management programs must contribute positively to watershed health. Key to achieving these outcomes
is finding practical, common sense ways to balance the economic and cultural needs of communities with
the biological needs of natural resources.
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Figures updated August 2013 by Weldon Cooper Center for Public Service, Demographics & Workforce Group,
www.coopercenter.org
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